A Learning for Jobs Review of Belgium (Flanders)

Transcription

1 OECD Reviews of Vocational Education and Training A Learning for Jobs Review of Belgium (Flanders) Viktória Kis October 2010

2 OECD Reviews of Vocational Education and Training A Learning for Jobs Review of Belgium Flanders 2010 Viktória Kis

3 This work is published on the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of the Organisation or of the governments of its member countries. ISBN (PDF) Series: OECD Reviews of Vocational Education and Training ISSN (online) Corrigenda to OECD publications may be found on line at: OECD 2010 You can copy, download or print OECD content for your own use, and you can include excerpts from OECD publications, databases and multimedia products in your own documents, presentations, blogs, websites and teaching materials, provided that suitable acknowledgment of OECD as source and copyright owner is given. All requests for public or commercial use and translation rights should be submitted to Requests for permission to photocopy portions of this material for public or commercial use shall be addressed directly to the Copyright Clearance Center (CCC) at or the Centre français d exploitation du droit de copie (CFC) at contact@cfcopies.com.

4 TABLE OF CONTENTS 3 Table of contents Summary: strengths, challenges and recommendations... 5 Strengths... 5 Challenges... 5 Recommendations... 6 Chapter 1 Introduction The OECD policy review of Belgium (Flanders) The structure of the report A snapshot of the system Strengths and challenges System-wide issues Chapter 2 Policy recommendations General skills in secondary education Postponing the age of tracking Workplace training The mix of provision: determining the number of trained persons per occupation Career guidance Acronyms References Annex A Programme of the review visits Annex B An overview of secondary education in Flanders Annex C International and national statistics Annex D QualiCarte Tables Table 2.1 Enrolment in secondary education and tertiary VET Table 2.2 Enrolment in continuing VET Table 2.3 DBSO students in different types of activity during the period not spent in school Table C.1 Enrolment rates, by age Table C.2 Performance of 15-year-olds in science, reading and mathematics... 68

5 4 TABLE OF CONTENTS Figures Figure 1.1 Labour market outcomes of VET programmes Figure 1.2 Destination of school leavers by secondary track Figure 1.3 Completion rates in professional bachelor programmes Figure 2.1 Percentage of students at each proficiency level on the PISA mathematics scale Figure 2.2 Percentage of students at each proficiency level on the PISA science scale Figure 2.3 Sideways mobility in secondary education Figure 2.4 General skills in general and vocational tracks Figure 2.5 Participation in internships in initial secondary education Figure C.1 Probability of unemployment and literacy proficiency Boxes Box 1.1 Learning for jobs: the OECD policy study of vocational education and training... 8 Box 2.1 Maths-enhanced vocational education Box 2.2 What can students gain from workplace learning? Box 2.3 What can employers gain from workplace training? Box 2.4 External bodies involved in apprenticeship training Box 2.5 Quality control of workplace training in Switzerland Box 2.6 Equipment and supplies grants in the United States Box 2.7 Examples of career advisor training Box 2.8 Career guidance in Switzerland Box 2.9 Career information in the Czech Republic and South Carolina ACKNOWLEDGEMENTS The OECD is very grateful to the Flemish authorities, and particularly to the national co-ordinator Evelien Masschelein for her work in providing information and advice and organising the visits to Belgium Flanders in September and December We would also like to thank the many different people in different parts of Flanders who, during our visits, gave their time to welcome us and answer our questions.

6 SUMMARY: STRENGTHS, CHALLENGES AND RECOMMENDATIONS 5 Summary: strengths, challenges and recommendations This review of vocational education and training (VET) in Belgium (Flanders) is part of Learning for Jobs, the OECD policy study of VET, a programme of analytical work and individual country reviews designed to help countries make their VET systems more responsive to labour market needs. The review of Belgium (Flanders) assesses the main challenges faced by the VET system and presents an interconnected package of five policy recommendations. Each recommendation is described in terms of the challenge, the recommendation itself, supporting arguments, and issues of implementation. Strengths Challenges The Flemish VET system has a number of strengths: There is a good range of vocational options at different levels. Initial secondary education offers full-time and part-time programmes, while continuing VET provides further learning and second chance opportunities in centres for adult education, VDAB and Syntra Vlaanderen training centres. The average performance of 15-year-olds in reading, mathematics and science is very strong by international standards, as indicated by PISA assessments, in which Flanders has been consistently among the best performing countries. A commitment to universal upper secondary education is embedded in compulsory education up to age 18, with the possibility of part-time education from age 16. Policy development is dynamic, as illustrated by the recent green paper entitled Quality and Opportunities for Every Pupil, the Competence Agenda and the Pact 2020 agreement concluded between the government and social partners. Evidence is used extensively in reforms. The Flemish VET system gives commendable attention to entrepreneurial training through the Flemish Agency for Entrepreneurial Training (Syntra Vlaanderen), which offers flexible routes to acquire entrepreneurial competences. At the same time the system faces a number of challenges: A proportion of students have weak literacy and numeracy skills. Students are tracked at a young age (14, with institutional transition at age 12) and there are limited opportunities for upward progression between secondary tracks.

7 6 SUMMARY: STRENGTHS, CHALLENGES AND RECOMMENDATIONS Recommendations The share of unqualified school leavers is high, in % of year olds did not have a secondary qualification 1 and did not follow secondary education. Some parts of the VET system make limited use of workplace training, and the effectiveness of quality assurance mechanisms for workplace training also varies. The mix of provision is dominated by student preferences in school-based VET, with limited mechanisms to take into account labour market needs. The quality of career guidance provided in compulsory education, including collaboration between schools and pupil guidance centres, is variable. Sources of career information are fragmented. 1. Strengthen the core general skills component in programmes that currently contain limited general education, in particular in BSO, DBSO and Syntra apprenticeships. For those who wish to obtain general education beyond the core general skills component, create options to do so. Systematically identify those with literacy and numeracy problems at the beginning of VET programmes and provide targeted support to those in need. Enhance data and research on the achievement of the final objectives and on ways to achieve these. We welcome the ongoing sample-based standardised assessment of the final objectives and recommend extending this approach. 2. Postpone tracking at least until the age of 14 and make education in the period preceding tracking fully comprehensive. 3. Sustain and further develop workplace training. Ensure the quality of workplace training, by controlling its content, strengthening the assessment of competences and providing an appropriate level of preparation to those who supervise students. 4. Ensure the mix of provision is more responsive to labour market needs by taking the availability of workplace training into account to balance the influence of student preference in upper secondary VET. This should be complemented with high quality career guidance. Reform the elements of funding that risk distorting the mix of VET provision. 5. Strengthen and develop career guidance by: Ensuring that career guidance receives attention, separately from psychological counselling, and is not submerged by it. Consider the establishment of a separate career advisor profession. Ensuring that individuals receive guidance that is objective and independent from the providers of education and training programmes. Creating a comprehensive website with career information about all levels of education and training. 1. Secondary qualifications include a diploma of the 2 nd year of the 3 rd stage of ASO, TSO or KSO; certificate of the 2 nd year of the 3 rd stage of BSO; apprenticeship certificate; DBSO completion certificate.

8 1. INTRODUCTION 7 Chapter 1 Introduction This chapter describes the OECD policy study of VET, the review of Belgium (Flanders), summarises the main features of the Flemish VET system and sets out an assessment of its strengths and challenges.

9 8 1. INTRODUCTION 1.1 The OECD policy review of Belgium (Flanders) This is one of a series of reviews of vocational education and training (VET) in OECD countries (see Box 1.1). Box 1.1 Learning for jobs: the OECD policy study of vocational education and training The review aims to bridge the gap between learning and jobs, by exploring how to make initial vocational education and training for young people respond better to labour market requirements. It therefore looks at initial VET in schools, colleges, workplaces and other institutions, offering policy messages for all OECD countries, alongside concrete advice on policy reform in reviewed countries. A programme of analytical work drew on evidence from all OECD countries, including a questionnaire on VET systems, literature reviews of previous OECD studies and the academic literature on topics such as costs and benefits, career guidance and VET during the economic crisis. The results of both the analytical work and the country reviews fed into this comparative report, of which an initial version was published on the OECD website in October A separate OECD exercise on systemic innovation in VET, was published as OECD (2009b), while the related Jobs for Youth review will be published at the end of Skills Beyond School, a new policy review examining postsecondary vocational education and training will be launched by the OECD at the beginning of See Country policy reviews were carried out in Australia, Austria, Belgium (Flanders), the Czech Republic, Germany, Hungary, Ireland, Korea, Mexico, Norway, Sweden, Switzerland, the United Kingdom (England and Wales), and the United States (South Carolina and Texas) between the end of 2007 and Special studies were also conducted in Chile and the People s Republic of China. Canada, Denmark, Finland and the Netherlands have also contributed financially to the work. The review follows the standard methodology established for the OECD policy review of VET. At the outset, two members of the OECD Secretariat visited Belgium (Flanders) on 8-11 September 2009 for an initial preparatory visit to assemble information on the characteristics of VET in Belgium (Flanders) and to identify the main policy challenges. Then the Flemish authorities were invited to complete a detailed questionnaire. Equipped with the responses and other background information, three members of the Secretariat returned for a week of policy visits on 8-11 December 2009 to conduct further interviews in various parts of Belgium (Flanders) (see Annex A for the programme of the visits) in order to develop policy recommendations. This review presents their recommendations, with supporting analysis and data. (An earlier draft of this report was submitted to the Flemish authorities for verification of factual information in order to ensure that the description of the Flemish VET system presented in this document is correct.) The review is not comprehensive, but it examines policy issues in the context of the whole VET system. The review deals with a deliberately limited set of issues, on which it could draw on international experience or could otherwise usefully add value to the domestic policy debate.

10 1. INTRODUCTION The structure of the report This first chapter places the Flemish review of VET in the context of the OECD policy study of VET, presents the structure of the report, describes the main features of Flemish VET system, and examines its strengths and challenges. The second chapter proposes policy recommendations. Each policy recommendation is set out as: The challenge the problem that gives rise to the recommendation. The recommendation the text of the recommendation. The supporting arguments the evidence that supports the recommendation. Implementation a discussion of how the recommendation might be implemented. 1.3 A snapshot of the system An overview of initial and continuing VET programmes In Flanders part-time education is compulsory until the age of 18, requiring students to spend at least 28 hours per week in education and training or education and training combined with work. Full-time education is compulsory until the age of 16, except that those who have completed the first stage of secondary education may opt for part-time education at the age of 15 (Eurydice, 2009a). Primary education enrols students typically from age six to 12. Secondary education includes three stages, each two years long. In the first stage of secondary education there are two streams, A and B. In principle, education is comprehensive in the A stream, although students are already in secondary schools, which provide one or several of the tracks of secondary education. The first year of the B stream aims to give students enhanced support with the aim of entering the A stream, but in practice most students continue in the second, pre-vocational year and very few progress into the second year of the A stream. Those who completed the first stage in the A stream can progress to all second stage options, while those who complete the B stream are only eligible for BSO or part-time VET (i.e. Syntra apprenticeship, DBSO). After the first stage of secondary education students may choose between, or are directed into, four full-time and two part-time tracks. The full-time tracks are offered by secondary schools and include general education (ASO), technical education (TSO), artistic education (KSO) and vocational education (BSO). The part-time options include part-time vocational secondary education (DBSO) offered by part-time secondary schools, and apprenticeships (leertijd) offered by Syntra training centres. Artistic education is not in the scope of this review. The diploma of secondary education, required for entry to tertiary education, can be obtained in several tracks. ASO (ISCED 3A): General upper secondary education leads to the diploma of secondary education. TSO (ISCED 3A): Technical secondary education aims to prepare students for a career and further education in 22 occupational fields. After completing the third

11 10 1. INTRODUCTION stage of TSO students obtain the diploma of secondary education. An optional additional specialisation year (Sense) allows students to obtain a professional certificate (ISCED 4C). BSO (ISCED 3C): Vocational secondary education has a strong practical focus, offering students a choice between 19 occupational fields. After completing the third stage of BSO students obtain a certificate (getuigschrift). Those who wish to obtain the diploma of secondary education must complete the optional third year of the third stage. DBSO (ISCED 3C): Part-time vocational secondary education combines one to two days a week at school and three to four days of other activities. These include labour participation (e.g. paid or unpaid labour, volunteering, certain types of training); bridging projects and preliminary trajectories, (aiming to develop employability skills); and personal development trajectories (intensive individual guidance for vulnerable students). Depending on their achievement, students may obtain a professional qualification or a diploma of secondary education. Syntra apprenticeships (ISCED 3C): Apprentices spend four days a week in a company and one day a week in a training centre. The duration of training varies between one and three years. Apprentices have to be aged 15-25, further entry requirements exist only for a few occupations (e.g. dental technician, optician). The programme leads to a professional qualification and, if apprentices complete the required general education component, also to the diploma of secondary education. Apprentices receive an apprentice allowance from the employer. Apprentices whose contract is terminated due to problems may follow a preparatory trajectory (voortraject) alongside their training in Syntra centres for a maximum of six months. These programmes help apprentices find a new apprenticeship contract by assisting in their search and developing their soft skills. Post-secondary VET includes associate degree programmes offered by adult education centres and university colleges 2 and professional bachelor (professioneel gerichte bachelor) programmes offered by university colleges. 2. In the case of nursing, associate degree courses are provided in secondary schools. University colleges are legally entitled to offer associate degrees as of September But due to delays in implementation, at the moment of writing university colleges do not yet offer associate degree programmes.

12 1. INTRODUCTION 11 Table 2.1 Enrolment in secondary education and tertiary VET Number of students enrolled in 2008/09 Stage Programme Number of students FT/PT First stage of secondary A stream FT education B stream FT ASO FT TSO FT Second and third stage of BSO FT secondary education DBSO 6935 PT Apprenticeship PT 3 rd year of the 3 rd stage of BSO 2315 FT Sense 4693 FT Tertiary VET Associate degree FT or PT (mostly PT) Professional bachelor s FT or BT (mostly FT) 1. Reference year: 2007/08 FT full-time, PT part-time Source: Flemish Ministry of Education and Training (2010), Statistical yearbook of Flemish education webpage, accessed July Continuing VET includes adult secondary education (ISCED 3C), provided by adult education centres; vocational programmes (ISCED 2C to 4C) offered by VDAB and Syntra Vlaanderen; and entrepreneurial training offered by Syntra Vlaanderen (ISCED 4C). Table 2.2 Enrolment in continuing VET Number of students enrolled in 2007/08 Programme Number of students FT/PT Adult vocational secondary education PT VDAB programmes PT Syntra entrepreneurial and additional training courses FT or PT Note: FT full-time, PT part-time Source: Flemish Ministry of Education and Training (2009a), Background report, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished. Education and training providers The constitution of Belgium guarantees the freedom of education in the sense of freedom of publicly funded schools to organise themselves as they wish within some broad parameters. This includes the right of establishment, the right of orientation (e.g. religion) and the right of organisation of schools. Secondary schools are organised under education networks (koepel) representative associations of the school governing bodies. GO! provides public education, acts under the authority of the Flemish Community and is required to be secular by the constitution. OVSG provides public education through municipalities.

13 12 1. INTRODUCTION POV provides public education through provinces. VGO provides subsidised private education. It involves mainly catholic schools under the umbrella organisation VSKO (Flemish Secretariat for Catholic Education). The funding formula for secondary education takes into account, among other factors, the educational track and occupational field, and the socio-economic background of students. The content of secondary education is regulated through minimum objectives defined by the government: so called final objectives (eindtermen) exist for all compulsory subjects in secondary education. They are either subject-bound or cross-curricular and have been established for the first stage in the A stream, and the second and third stages of all secondary tracks. The B stream follows developmental objectives, rather than final objectives. 3 The organising bodies are free to develop their own curricula, which follow the final objectives. The curricula must be approved by the inspectorate and ratified by the Flemish Parliament (Eurydice, 2009b). Adult education centres provide adult secondary education, including VET. They are subsidised by the Ministry of Education and Training on the basis of teaching hours. The operational budget of centres is composed mainly of registration fees, paid by students. The registration fee is limited to EUR 1 per hour and to a maximum of EUR 400 per course. Means-tested support is available to students. University colleges offer professional bachelor courses and, after implementation of the relevant legislation, will offer associate degree courses. They are fully subsidised by the Ministry of Education and Training and have full autonomy over their budget. Students pay registration fees, which are capped by the Flemish government at about EUR 550 per academic year for a full-time course. Means-tested support is available to students. VDAB (Flemish Employment and Vocational Training Agency) operates under the remit of the Flemish minister of labour. It offers training for the unemployed and employees, which may be a complete training programme towards an occupation, training for specific technical skills, or for key competences (e.g. literacy, numeracy). Syntra Vlaanderen (Flemish Agency for Entrepreneurial Training) operates under the supervision of the Ministry of Work and Social Economy. It subsidises and monitors 24 training centres across Flanders. Syntra provides training in the following key areas: apprenticeship (see above), entrepreneurial training, additional specialised training, and tailor made programmes for companies. Regional Technological Centres (RTC) do not provide VET themselves, but aim to facilitate connections between companies and initial secondary schools or centres for adult education. They also aim to facilitate workplace training opportunities, the sharing of equipment between schools and in-service training of teachers. Finally, they aim to create a platform for sharing good practices in the field of collaboration. RTCs exist in each region and are independent of education networks (Flemish Ministry of Education and Training, 2009a). 3. For further details on the subjects, the developmental aims and final objectives for different stages and tracks, see

14 1. INTRODUCTION 13 The outcomes of VET programmes Figure 2.1 shows the employment outcomes of those who leave initial secondary VET programmes (data include both completers and drop-outs). In adult secondary education there are no data on labour market outcomes. Figure 1.1 Labour market outcomes of VET programmes Percentage of school leavers who are unemployed or have no work experience one year after leaving school 1st stage of secondary education DBSO Apprenticeship BSO 2nd stage BSO 3rd and 4th stage TSO 2nd stage TSO 3rd stage ASO 2nd stage ASO 3rd stage Professional bachelor Academic bachelor Master Without any work experience Unemployed Note: Data on apprenticeships include both completers and drop-outs. The 2 nd stage of BSO, TSO and ASO, as well as the academic bachelor, are not final degrees in the sense that completers may pursue further studies rather than entering employment. Source: VDAB School Leavers Survey (2008) cited in Flemish Ministry of Education and Training (2009b), Responses to the National Questionnaire, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished. Figure 1.2 shows that over 90% ASO completers and about 70% of TSO completers enrol in tertiary education. Conversely, only 11% of BSO graduates enter a tertiary programme, while less than 0.1% of DBSO graduates do so. In addition, completion rates in tertiary education vary greatly among graduates from different tracks (Figure 1.3). Students from ASO are most likely to succeed in tertiary education, while graduation rates among BSO graduates are only 20%.

15 14 1. INTRODUCTION Figure 1.2 Destination of school leavers by secondary track Percentage of school leavers who have enrolled / have not enrolled in tertiary education in Flanders 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% ASO TSO BSO DBSO Not enrolled in tertiary education in Flanders Enrolled in an academic bachelor's programme in Flanders Enrolled in a professional bachelor's programme in Flanders Note: The figures refer to the destination of individuals who were enrolled in initial secondary education in 2007/08 but not in 2008/09. Data include school leavers from the third stage of ASO and TSO, the 3rd and 4th stages of BSO, and all school leavers from DBSO and modularised BSO. Data exclude part of those whose personal identification number was missing in the database. Source: Flemish Ministry of Education and Training (2010), personal communication, 2 April 2010, unpublished. Figure 1.3 Completion rates in professional bachelor programmes Completion rates among students who started their professional bachelor in 2003/ ASO TSO BSO Graduated in 2007/08 Graduated in 2006/07 Graduated in 2005/06 Source: Flemish Ministry of Education and Training (2009b), Responses to the National Questionnaire, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished. The role of social partners Social partners engage with the Flemish VET system through the Flemish Social and Economic Council (SERV). This body is composed of ten employer representatives (from various employer organisations) and ten trade union representatives (from various unions). SERV has a consultative and advisory function to the government on a range of issues, including education and training policy. The Flemish Education Council (VLOR)

16 1. INTRODUCTION 15 includes representatives of stakeholders (e.g. organising bodies, teachers, parents, students, principals, social partners) and advises the government on education policy. Since 2001 the government have been concluding agreements with individual economic sectors. Each sectoral agreement (sectorconvenant) establishes a protocol of cooperation for a period of two years 28 sectoral agreements were signed for the period The agreements cover topics such as school-company collaboration, and workplace training for apprentices, jobseekers and employees. These agreements also shape the priorities of labour market policy. Sectors also operate sectoral funds with contributions from companies and employees. The activities supported by these funds vary across sectors, but typically include the encouragement of training of current and potential employees; supporting companies in their competence development and communicating with schools and students (Flemish Ministry of Education and Training, 2009b). 1.4 Strengths and challenges Strengths The Flemish VET system has a number of strengths: There is a good range of vocational options at different levels. Initial secondary education offers full-time and part-time programmes, while continuing VET provides further learning and second chance opportunities in centres for adult education, VDAB and Syntra Vlaanderen training centres. The average performance of 15-year-olds in reading, mathematics and science is very strong by international standards, as indicated by PISA assessments, in which Flanders has been consistently among the best performing countries. A commitment to universal upper secondary education is embedded in compulsory education up to age 18, with the possibility of part-time education from age 16. Policy development is dynamic, as illustrated by the recent green paper entitled Quality and Opportunities for Every Pupil, the Competence Agenda and the Pact 2020 agreement concluded between the government and social partners. Evidence is used extensively in reforms. The Flemish VET system gives commendable attention to entrepreneurial training through the Flemish Agency for Entrepreneurial Training (Syntra Vlaanderen), which offers flexible routes to acquire entrepreneurial competences. Challenges At the same time the system faces a number of challenges: A proportion of students have weak literacy and numeracy skills. Students are tracked at a young age (14, with institutional transition at age 12) and there are limited opportunities for upward progression between secondary tracks.

17 16 1. INTRODUCTION The share of unqualified school leavers is high; in % of year olds did not have a secondary qualification 4 and did not follow secondary education. Some parts of the VET system make limited use of workplace training, and the effectiveness of quality assurance mechanisms for workplace training also varies. The mix of provision is dominated by student preferences in school-based VET, with limited mechanisms to take into account labour market needs. The quality of career guidance provided in compulsory education, including collaboration between schools and pupil guidance centres, is variable. Sources of career information are fragmented. 1.5 System-wide issues The following paragraphs describe some system-wide challenges, related to the more specific topics and associated recommendations in Chapter 2. The changing role of VET: preparing for a career and lifelong learning While in the past VET often prepared young people for one occupation, which was then maintained throughout life, one-to-one relationships between initial training and a single lifetime occupation are becoming rare. VET needs to prepare young people for labour markets with rapidly changing needs, equipping them with skills that will allow them to learn in the course of their career and change jobs easily. This has led, in the United States, to a new terminology of career and technical education in preference to vocational education and training. This requires sound general skills, in particular literacy and numeracy, as these underpin the ability to adapt to fast-changing workplace requirements and benefit from further education and training opportunities (see section 2.1). As the needs of the labour market change rapidly, the Flemish VET system (both initial and continuing VET) needs mechanisms to make sure that the mix of vocational provision in terms of numbers in different occupational fields matches the requirements of the labour market, as well as meeting the needs of students. In the light of this, the mix of provision in Flanders, which is now largely driven by student demand, should be balanced by employer needs (see section 2.4). Labour markets have become increasingly complex and dynamic, and education systems offer diverse pathways, meaning that career choices are getting harder. Flanders has a relatively complex set of pathways, tracks and options at different levels, alongside a strongly entrenched system of institutional choices. This increases the premium attached to good decision-making. Individuals can only reap the full benefits of the pathways offered in the Flemish VET system if they receive effective guidance both when making their first decisions in compulsory education, and as they progress in their careers (see section 2.5). 4. Secondary qualifications include a diploma of the 2 nd year of the 3 rd stage of ASO, TSO or KSO; certificate of the 2 nd year of the 3 rd stage of BSO; apprenticeship certificate; DBSO completion certificate.

18 1. INTRODUCTION 17 Progression within complex and diversified education systems is easier when there are clear pathways. Qualifications frameworks have the potential to illuminate progression pathways by designating a clear sequence of levels of qualifications. With this in mind, many countries have introduced qualifications frameworks and Flanders is in the process of implementing one. The legislation concerning the Flemish Qualifications Structure was adopted in April But the full support of social partners has not yet been obtained, as social partners are in favour of the concept of a qualifications framework but disagree with the way it is being implemented. International experience suggests that the engagement of stakeholders is key to successful implementation (Young, 2005; Raffe, Gallacher and Toman, 2007). One key goal for the government and the social partners should be to sit down together and negotiate an agreed solution. Engaging social partners The involvement of social partners in the development and implementation of VET policies ensures VET provision is relevant to labour market needs. Employers are clearly in a strong position to see if the content of curricula and qualifications meet current labour market needs, and to guide their adaptation to emerging requirements. In many countries employers have an advisory role in curriculum development, while in some countries (e.g. Switzerland) social partners participate in the decision making process as well. Employer engagement in policy development is essential if policy is to be successfully implemented, because it helps employers understand the system better. Employers who do not understand the policy context and the institutional settings are more likely to disengage. In Flanders, stronger social partner engagement with the VET system would facilitate policy change in a range of areas, such as the implementation of the qualifications framework, quality assurance in VET and the training of VET teachers and trainers. Active employer engagement is also crucial to achieve more and better workplace training a tool, which gives students access to a good learning environment, facilitates school-to-work transition and gives a signal about labour market needs (see section 2.3 and 2.4). Countries with strong social partner engagement typically have a set of interconnected institutions at national, sectoral and local level. In Flanders there is already partnership between social partners and the VET system, but this could usefully be strengthened to give employers more influence in VET policy development. This might involve reviewing the current structure of social partner involvement. Establishing a framework at various levels is useful, as ad hoc consultative arrangements may give undue influence to a few random (often larger) companies. But to be effective, institutions to engage employers with the VET system need to be representative of the diverse opinions found within employers groups. If employer organisations (rather than individual employers) are represented in government bodies, it is important that these organisations are genuinely representative and recognised as such by the great majority of individual employers. For example, in Flanders it is important that social partner representatives in the Flemish Education Council and the Flemish Social and Economic Council are genuinely representative of the views of social partners across Flanders.

19 18 1. INTRODUCTION The policy recommendations in the context of the whole VET system Although this review is not comprehensive, it looks at policy issues in the context of the whole VET system and pays particular attention to issues of articulation, coherence and coordination between different programmes. The issues examined in Chapter 2 were selected because of their importance in ensuring a well-articulated and coherent VET system, which is responsive to labour market needs. The first two sections focus mainly on initial secondary education because all young people participate in this level of education and the competences developed at this stage will strongly influence subsequent careers failures in this phase may be corrected later on but at a high cost both to the individual and to society. It is therefore essential to ensure that VET provides strong core general skills (Recommendation 1). Postponing tracking (Recommendation 2) would help low-performers have better outcomes, as well as improve equity. A well-articulated VET system requires not only appropriate progression pathways, but also individuals who are well-prepared to use these hence the importance of strong basic skills and options for more general education. The third section looks at workplace training in various parts of the Flemish VET system, identifying commendable practices and highlighting areas where it may be further developed. The fourth section sets out some principles that should guide the definition of the mix of VET provision, and discusses their implications for the Flemish VET system. The last recommendation concerns career guidance a key tool helping individuals benefit from learning opportunities. Again, good initial choices are important so strong attention has to be paid to career guidance in secondary education, while a good source of career information will help people further develop their skills throughout their careers.

20 2. POLICY RECOMMENDATIONS 19 Chapter 2 Policy recommendations The Flemish VET system offers a wide range of vocational options, including second chance opportunities. Policy development is dynamic and aims to continuously improve the VET system. To address the challenges faced by the Flemish VET system and improve its responsiveness to labour market needs, a set of five interconnected recommendations is proposed. First, the Flemish VET system would benefit from a stronger general skills component in programmes that contain limited general education. This should be completed with systematic identification and support of those with basic skills problems, and better data on the achievement of the final objectives. Second, we recommend postponing tracking at least until the age of 14 and making the period preceding tracking fully comprehensive. Third, workplace training would benefit students, employers and the VET system as a whole. Therefore we recommend sustaining and further developing workplace training, and controlling the content of workplace training to ensure its quality. Fourth, student preferences are an important factor in determining the mix of provision, but also have limitations. We recommend using the availability of workplace training as an indicator of labour market needs to balance student preferences. Finally, in the light of the importance of student preferences in the Flemish VET system, we recommend strengthening and developing career guidance.

21 20 2. POLICY RECOMMENDATIONS 2.1 General skills in secondary education Challenge This section looks at basic skills (i.e. literacy and numeracy) and general skills in a broader sense (i.e. literacy, numeracy, as well as other general subjects such as science, social studies, etc.). Some groups of students have weak general skills On average 15-year-olds in Flanders have strong mathematics, literacy and science skills, as indicated by PISA results. The proportion of high-achievers in PISA is also high. But some students have weak general skills. Although their proportion is low in comparison to OECD countries, these students are likely to face difficulties both during their education and training, and in the labour market. Data from IALS show that in the late 1990s people with weak literacy skills were more likely to be unemployed, even taking into account other background variables (educational attainment, age, gender) (Figure C.1 in Annex C). Since then the importance of literacy skills in the labour market has surely not decreased those with weak literacy skills will be highly vulnerable to unemployment. Figure 2.1 Percentage of students at each proficiency level on the PISA mathematics scale PISA 2003, by track Below level 1 Level 1 Level 2 Level 3 Level 4 Level 5 Level 6 DBSO BSO KSO TSO ASO Source: OECD (2008a), VET in PISA: Results from PISA 2003 and 2006, OECD, Paris. Available at: ; Flemish Ministry of Education and Training (2009b), Responses to the National Questionnaire, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished.

22 2. POLICY RECOMMENDATIONS 21 Figure 2.2 Percentage of students at each proficiency level on the PISA science scale PISA 2006, by track Below level 1 Level 1 Level 2 Level 3 Level 4 Level 5 Level 6 DBSO BSO KSO TSO ASO Source: OECD (2008a), VET in PISA: Results from PISA 2003 and 2006, OECD, Paris. Available at: ; Flemish Ministry of Education and Training (2009b), Responses to the National Questionnaire, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished. Within regular secondary education, the proportion of students who perform below the minimum level 5 of mathematic, reading and scientific literacy is high in DBSO and BSO (see Figure 2.1 and 2.2). It is clearly important that these students get adequate support in upper secondary education to remedy these weaknesses and prepare them for careers, which will place increasing demands on their literacy and numeracy skills. But interviews conducted during the visit suggest that not all schools systematically identify of basic skills problems or offer basic skills support. Research conducted by the Centre for Language and Education shows that BSO students hardly improve their literacy skills between the third and the sixth year of secondary education (Flemish Ministry of Education and Training, 2009b). More broadly speaking, the general education component of some programmes is limited. There are no system-wide data on the amount of time dedicated to general education in different vocational tracks. The government defines final objectives for each track and providers are free to design their curriculum accordingly. Also, in part of BSO general education is integrated with VET and is taught in a modularised, project-based approach. 6 But interviews conducted during the visit suggest that in some vocational tracks in particular apprenticeships, DBSO and BSO there is limited emphasis on general skills. Currently policy-makers in Flanders have limited data on the extent to which the final objectives are being achieved. This is a challenge as targeting policies at groups of students who need it is more difficult without adequate data. School inspections provide some information, PISA data test students competences and suggest that students in some tracks have very weak general skills. While schools assess their students in various ways, those with serious literacy and numeracy problems are not systematically identified and therefore cannot receive targeted support within their institutions. 5. In PISA level 2 is considered the baseline proficiency level in mathematics and science. 6. Some occupational fields such as nursing are fully modularised, in some fields the programme is modularised but not all school use it, while in other fields the programme is not modularised.

23 22 2. POLICY RECOMMENDATIONS Limited opportunities for sideways and upwards mobility in some tracks Students with poor results tend to descend a waterfall through the different tracks of secondary education 18% of ASO, 19% of TSO and 6% of BSO students finish their secondary education in a lower track than the one they started in. There is almost no upward mobility less than 0.5% of BSO and TSO students moved to higher tracks between 2004 and 2007 (see Figure 2.3). This is worrying, given that initial track selection is a very fallible process. It means that some of the potential in the lower tracks is being wasted. Track in 2004 Figure 2.3 Sideways mobility in secondary education Percentage of students who changed tracks between 2004 and 2007, by track in 2004 BSO BUSO TSO DBSO Drop-out Drop-out TSO BUSO DBSO ASO Drop-out BSO BUSO DBSO BSO ASO Drop-out BUSO DBSO BSO TSO TSO ASO Percentage of students who were in another track or dropped out by 2007 Source: Flemish Ministry of Education and Training (2009b), Responses to the National Questionnaire, Learning for Jobs: The OECD Policy Review of Vocational Education and Training, unpublished Students with the secondary diploma are nominally entitled to enter any tertiary programme, but in practice graduates of BSO, DBSO and Syntra apprenticeships have not received sufficient academic preparation to follow most tertiary programmes. Only 11% of those who complete BSO enter tertiary education (Figure 1.2) and many of those who do enter drop-out: only 20% of professional bachelor s students who come from BSO complete their programme (Figure 1.3). A number of stakeholders interviewed during the review visit argued that most BSO students are poorly prepared for tertiary studies they often struggle with the more theoretical approaches used in tertiary education and have insufficient competences in general subjects. While BSO, DBSO and Syntra apprenticeships are designed mainly for direct labour market entry and it may be unreasonable to expect a large proportion of these students to enter tertiary education, there will be some students in these tracks who are capable of benefiting from tertiary education and it is important that they have appropriate access paths.

24 2. POLICY RECOMMENDATIONS 23 Recommendation 1 Strengthen the core general skills component in programmes that currently contain limited general education, in particular in BSO, DBSO and Syntra apprenticeships. For those who wish to obtain general education beyond the core general skills component, create options to do so. Systematically identify those with literacy and numeracy problems at the beginning of VET programmes and provide targeted support to those in need. Enhance data and research on the achievement of the final objectives and on ways to achieve these. We welcome the ongoing sample-based standardised assessment of the final objectives and recommend extending this approach. Supporting arguments This recommendation is supported by three arguments. First, modern workplaces require strong literacy and numeracy skills. Second, optional further general education would facilitate mobility within secondary tracks and to tertiary education. Third, data and research are needed to underpin effective policies and interventions. Modern workplaces require strong literacy and numeracy skills The limited amount of general education in Syntra apprenticeships, DBSO and BSO may reflect a traditional perception of VET training young people for a lifetime occupation. Today VET graduates face a different labour market, shaped by technological change, globalisation and increasingly knowledge-based economies. This means they will have to adapt to changing requirements in their own occupation and many will need to move to another occupation in the course of their career. A study from the United States (Autor, Levy and Murnane, 2003) argues that an increasing number of jobs, including blue-collar jobs, require problem-solving skills (i.e. the ability to solve problems that cannot be solved by simply applying rules) and complex communication skills (i.e. the ability not only to extract and transmit information, but also to communicate a particular interpretation of it). It is argued that literacy and numeracy skills underpin the development of problem-solving and communication skills (Levy and Murnane, 2004). Strong literacy and numeracy skills are associated with better earnings and employment rates, as indicated by studies from Australia (Chiswick, Lee and Miller, 2002) and the United Kingdom (McIntosh and Vignoles, 2001). Data from IALS also show that people with weak literacy skills are more likely to be unemployed, even if other background variables (educational attainment, age, gender) are taken into account (Figure C.1 in Annex C). These findings suggest that VET programmes that currently contain limited general education (BSO, DBSO, apprenticeships) should contain a stronger core set of general skills and offer support to those who have basic skill problems. A stronger general education component, common across all VET programmes, would make all students better prepared for the labour market and more capable of benefitting from further education and training opportunities. One potential risk is that stronger general education might undermine students engagement and increase drop-out. Finding the balance is a delicate task. But is worth dedicating considerable effort to finding ways to provide all students with strong basic

25 24 2. POLICY RECOMMENDATIONS skills, as literacy and numeracy skills are clearly crucial in the labour market. Research studies point to some approaches that can help strengthen general skills, while limiting the risk of drop-out. For example on tackling basic skill deficiencies, a study of 18 further education colleges in the United Kingdom (Basic Skills Agency, 1997) found that offering remedial basic skills support to students dramatically reduced drop-out rates. Literacy and numeracy instruction can also be integrated into VET subjects. In Flanders, the integration of general education and VET is used in part of BSO and Syntra apprenticeship programmes. This approach could usefully be applied in other parts of the VET system (see implementation). Research shows that engaging students with content related to their interests is a very effective way of improving literacy and numeracy (NCTE, 2006). Helping students make connections between basic skills and the real world can motivate them. Motivation is critical in literacy instruction; a review of evidence on adolescent literacy from the United States (Kamil, 2003) argues that students will not benefit from reading instruction unless they are motivated to read. Optional further general education would facilitate mobility within secondary tracks and to tertiary education The limited general education component of some vocational tracks makes sideways mobility (e.g. from BSO to TSO) in secondary education difficult. Once students are tracked (from a relatively young age, see section 2.2), it is difficult for them to acquire stronger general education than that offered in their own track. But students who graduate from BSO often struggle in tertiary education because of weaknesses in their general education and those in DBSO and apprenticeship rarely enter tertiary education. Stronger core general education (common across all tracks) would, in itself, improve the skills of VET graduates in terms of employability and ability to benefit from further learning opportunities such learning may take place formally or informally in a workplace, in formal adult training programmes or in tertiary institutions. In addition, there should be options for enhanced general education (beyond the core general education component), which would make BSO students and apprentices better prepared for further education and training. It would also facilitate upward mobility between tracks, for example BSO students who have taken optional extra mathematics will be better prepared to move to TSO. Data and research underpin effective policies and interventions Data are required to identify target groups and areas that need particular attention. A number of studies suggest that relying on a self-declaration of basic skills is insufficient (e.g. Bynner and Parsons, 2006; Finnie and Meng, 2005), as many people with weak basic skills do not recognise that they have difficulties, especially in respect of numeracy, while those who do know that they have basic skill problems may be reluctant to admit it (Basic Skills Agency, 1997). Greater awareness of literacy and numeracy problems encourages people to seek help. Bynner and Parsons (2006) found that once people were aware of weaknesses in their basic skills, they tended to be interested in improving these. This is in line with an earlier study of further education students in the United Kingdom (Basic Skills Agency, 1997), which found that a major barrier to taking up basic skills support was that many people did not know that basic skills were essential to the successful completion of their course.